Planning for Offshore Energy Development:

Transcription

1 Planning for Offshore Energy Development: How Marine Spatial Planning Could Improve the Leasing/Permitting Processes for Offshore Wind and Offshore Oil/Natural Gas Development June 2013 Susan F. Tierney, PhD With Stephen Carpenter Analysis Group, Inc. This white paper was commissioned by the New Venture Fund s (NVF) Fund for Ocean Economic Research (FOER). This paper represents the views of the authors, and not necessarily the views of NVF, FOER, or the employer of the authors.

2 Table of Contents EXECUTIVE SUMMARY 2 PLANNING FOR OFFSHORE ENERGY DEVELOPMENT: How Marine Spatial Planning Could Improve the Leasing/Permitting Processes for Offshore Wind and Offshore Oil/Natural Gas Development 5 America s Offshore Energy Resources: Opportunities and Realities 5 Marine Spatial Planning: Possibilities for Improving the Efficiency of Offshore Energy Leasing/Permitting/Development? 10 Connecting the Dots Between Ocean Planning and Offshore Energy Development 11 Recommendations: Better Planning for Better Permitting and Development of Offshore Energy Resources 16 Areas for Further Research and Inquiry 19 APPENDICES 1. BACKGROUND ON THE REPORT 2. OFFSHORE OIL/GAS PERMITTING 3. OFFSHORE WIND PERMITTING 4. OCEAN PLANNING 5. LIST OF ACRONYMS 1

3 EXECUTIVE SUMMARY 1 America s Offshore Energy Resources: Opportunities and Realities At first blush, development of offshore fossil fuels (such as oil and natural gas) and renewable energy (like offshore wind) could not be more different. But when it comes to developing these varied offshore energy resources, they have more in common than initially meets the eye: The United States has a huge potential, domestic resource base for both offshore oil/gas and offshore wind. Private companies must obtain a complex set of federal government approvals in order to gain access to develop offshore energy resources located in the US Outer Continental Shelf (OCS). The Department of the Interior (DOI)/Bureau of Ocean Energy Management s (BOEM) leasing/planapproval processes are still evolving. Important changes were introduced for oil and gas in the aftermath of the Macondo accident and oil spill in the Gulf of Mexico; similarly, the processes for permitting offshore wind continues to evolve in light of the relative immaturity of the industry in the United States. Some areas of the OCS are now off-limits for energy development, either because of congressional or presidential action or the fact that they were not included in the DOI s leasing program for Most parts of the Atlantic, the Eastern Gulf of Mexico, and Pacific coast areas of the contiguous 48 states are now closed to development of oil and gas resources, and only a few designated Wind Energy Areas in the Northeast/Mid-Atlantic OCS are open for offshore wind development. Offshore energy development occurs in a very busy context, with energy resources located in areas where there are many other uses of the ocean (including valuable commercial fisheries, military areas, shipping lanes, recreational areas, and sensitive ecological areas). Offshore energy development is often controversial, in light of these multiple and overlapping uses. The federal leasing/permitting process is extremely complex and less efficient than it could be. Ocean energy development requires extreme tenacity because the process is so technically complex, time-consuming, and touched by so many federal and state laws and agencies. Typically, offshore energy development communities are not familiar with developments in ocean policy or marine spatial planning, which also may affect development (and vice versa). The New Venture Fund s (NVF) Fund for Ocean Economic Research (FOER) engaged an Analysis Group team, led by Dr. Susan Tierney, to prepare an independent white paper analyzing the current regulatory environment for developing energy resources located in the ocean waters in the United States. A central issue of interest to FOER was the potential for ocean planning to provide for greater efficiency in the processes governing access to and permitting of energy infrastructure in the ocean without compromising environmental protection. The Analysis Group team examined these and other related issues by researching and analyzing current regulatory frameworks and processes for accessing ocean-based energy resources. For oil and gas development, the focus was on activities in the Gulf of Mexico, where there is a long history of development but where important changes have occurred after the 2010 Macondo accident and oil spill. For offshore wind, the focus was on the Mid-Atlantic region where there is strong interest in resource development. The Analysis Group team collected information from publicly available sources, and conducted interviews with individuals (from the private sector, from government agencies, and from environmental organizations) directly involved in or familiar with the relevant regulatory or planning processes. This paper contains the Analysis Group team s recommendations based on that research, which was completed in December Photo credits: Offshore oil rig, Ocean photo, John T. Tierney; Offshore wind turbines, concludes/. 2

4 Marine Spatial Planning: Understanding What s Happening in the Oceans Ocean planning, also known as Marine Spatial Planning (MSP) refers to a suite of approaches that provide for understanding, evaluating, assessing, and siting of ocean uses. In simplest terms, MSP involves transparent and open processes for fostering better understanding among stakeholders about what is happening in ocean areas, about what resources and human uses are located where, and about implications of changes in uses of the resources located in the ocean. MSP has been used around the world at the national, regional, and state level. MSP processes had already started in many states and regions of the United States prior to the July 2010 Presidential Executive Order that named MSP as one key component of the National Ocean Policy. Connecting the Dots between Ocean Planning and Offshore Energy Development Ocean planning could improve the efficiency of various aspects of the leasing and permitting processes for offshore energy development, even under current regulatory frameworks. This could occur through: Improved quality and quantity of location-specific technical information. Improved coordination and leveraging of information collection and mapping efforts across federal agencies, across states in regional contexts, and across federal/state efforts. Improved access to location-specific information for federal and private-sector decision makers, and for other interested stakeholders (including the states, other ocean industry groups, environmental organizations, and others). Improved quality and quantity of public and private participation in determining the disposition of ocean resources by bringing parties together early in the process and identifying issues that need to be addressed when determining whether and how to allow energy development projects. Improved efficiency of public and private expenditures devoted to information collection/analysis and project permitting, while reducing regulatory risk. Enhanced state/federal cooperation on ocean resource development and protection objectives. More proactive and less reactive government decision making. Constructive pathways through which the federal government could consider whether, and if so, how to open up particular areas of the OCS for energy development. Recommendations: Better Planning for Better Permitting/Development of Offshore Energy Resources Key recommendations for improving the efficiency of permitting with support from ocean planning: Convene members of the ocean energy development/ protection communities and those in ocean planning communities to share information and to educate each other on different perspectives. Use ocean energy issues to pilot new ocean planning processes of the National Ocean Council. Use ocean planning as a predicate to opening up areas of the OCS for offshore energy development, and as a critical pathway toward engaging stakeholders on access issues. Use ocean planning processes more formally, in structured and institutionalized manners, to identify ways to streamline and coordinate permitting processes across agencies. Use ocean planning to identify and prepare a roadmap to fill gaps in baseline scientific and technical information relevant for permitting of offshore energy facilities. Use ocean planning to consider changes in the BOEM wind area leasing process. 3

5 Areas for further research and inquiry beyond this study Useful areas of further analysis include: Legal analysis and process roadmap relating to the potential for greater tiering of National Environmental Policy Act (NEPA) environmental reviews for offshore energy leases/development plans (including standards for determining whether, and if so, when and how to allow categorical exemptions from the NEPA process). Similarly, legal analyses and roadmaps to allow for tiering of applications and reviews under other statutes (such as Coastal Zone Management Act, Marine Mammal Protection Act). A study of best practices and lessons learned from state/regional/federal ocean-planning approaches, especially as applied in permitting contexts. Studies identifying ways to develop quid pro quo requirements and study protocols that accompany government decisions to allow companies to access off-limit areas for scientific studies and collection of technical data (e.g., seismic studies). 4

6 PLANNING FOR OFFSHORE ENERGY DEVELOPMENT: How Marine Spatial Planning Could Improve the Leasing/Permitting Processes for Offshore Wind and Offshore Oil/Natural Gas Development 2 America s Offshore Energy Resources: Opportunities and Realities Introduction: With so much attention focused in recent years on the tremendous growth in supply of shale gas and onshore wind energy around the United States, it would be easy to overlook the importance of offshore energy resources to the nation s energy future. A huge share of the nation s oil, gas, and renewable energy resources is located in the oceans of America s Outer Continental Shelf (OCS). 3 At first blush, these offshore energy resources fossil fuels (like oil and natural gas) and renewable energy (like wind) could not be more different, and each has its own passionate and adamant supporters. For the fossil fuels, offshore oil and natural gas production has been underway for more than a half century in some areas such as the Gulf of Mexico. As of mid-2012, oil production there contributed a fifth of all domestic oil production, and has provided a higher share in other years. Many of the companies that produce in this area are among the world s largest corporations, and sell their output into global energy markets. Offshore oil/gas production accounts for a sizeable portion of the Gulf states economies and it coexists alongside other ocean uses, such as tourism and commercial and recreational fishing. (See Appendix 2 for more information about offshore oil/natural gas development and permitting.) By contrast, the offshore wind industry in the United States is still in its infancy. Although offshore wind is already a big renewable energy supply source in many European countries, there are currently no operational offshore wind farms in the United States. American offshore wind developers are much smaller companies with much more modest balance sheets. They must sell and deliver their output into local electricity systems where key attributes of the energy technology (such as its zero greenhouse gas emission profile) is not fully valued in commercial energy markets. (See Appendix 3 for more information about offshore wind energy development and permitting.) Offshore Energy Resources More in Common than Meets the Eye: But on closer inspection, permitting and development of offshore oil/gas and offshore wind have many things in common: A huge offshore energy resource base: The untapped resources associated with each type of offshore energy have the potential to contribute substantially to the nation s energy supply. For oil, a recent assessment by the Department of Interior s Bureau of Ocean Energy Management (BOEM) concluded that the United States unproven technically recoverable base of conventional oil resources is nearly three times as large as that located in onshore areas, 4 and amounts to over four decades of 2 The New Venture Fund s (NVF) Fund for Ocean Economic Research (FOER) engaged an Analysis Group team, led by Dr. Susan Tierney, to prepare an independent white paper analyzing the current regulatory environment for developing energy resources located in the ocean waters in the United States. (Dr. Tierney has extensive experience in policy and permitting issues relating to renewable energy and oil/natural gas resources, as well as in ocean planning.) A central issue of interest to FOER was the potential for ocean planning to provide for greater efficiency in the processes governing access to and permitting of energy infrastructure in the ocean without compromising environmental protection. The Analysis Group team examined these and other related issues by researching and analyzing current regulatory frameworks and processes for accessing ocean-based energy resources. For oil and gas development, the focus was on activities in the Gulf of Mexico, where there is a long history of development but where important changes have occurred after the 2010 Macondo accident and oil spill. For offshore wind, the focus was on the Mid-Atlantic region where there is strong interest in resource development. The Analysis Group team collected information from publicly available sources, and conducted interviews with individuals (from the private sector, from government agencies, and from environmental organizations) directly involved in or familiar with the relevant regulatory or planning processes. This paper contains the Analysis Group team s recommendations based on that research, which was completed in December (See Appendix 1 for background on the study.) 3 The National Oceanic and Atmospheric Administration (NOAA) defines the OCS as including the sea-bed and subsoil beyond the continental margin out to a distance of 200 nautical miles from the baseline. The U.S. has sovereign rights and exclusive jurisdiction over the exploration and exploitation of the continental shelf. 4 The size of the nation s oil and gas resource base can be viewed through multiple lenses, with characterizations expressed in various technical ways: For example, the unproven technically recoverable oil resources mentioned here are equivalent to undiscovered technically recoverable resources (those that have yet to be discovered but, regardless of economic feasibility, are assumed to be extractable given current technologies). (Total US undiscovered technically recoverable conventional oil resources: 88.6 billion barrels of oil (BBO) in the OCS; 32 BBO in the other 5

7 crude oil at current levels of US field production. 5 Similarly, a recent assessment by the National Renewable Energy Laboratory of the technical potential for offshore wind indicates that there are more than 4,150 gigawatts (GW) of offshore wind generating capacity; 6 this compares to approximately 45 GW of current onshore wind capacity, and total installed generating capacity for all US electric sources of 1,055 GW in Federal government approvals are required for private companies access to develop the resource: Private firms seeking to develop energy resources in the US OCS must request and receive the right to do so from the federal government, which manages the area extending outward from the states ocean territories (typically three miles out from shore) to the edge of the United States 200- mile exclusive economic zone (EEZ). BOEM administers the leasing, permitting and development processes for both offshore oil/gas and wind. Gaining access occurs through different processes for wind as compared to oil/natural gas. However, both involve multi-year processes that start with high-level decisions about which areas of the OCS will be open for development, then continue through issuance of leases to specific companies, and finally move to review/approval of operators exploration/site assessment plans, to review/approval of specific project development plans. BOEM s leasing/plan-approval processes are still evolving: Although BOEM (with predecessor agencies 8 ) has been issuing leases and plan approvals for many decades, much of the processes for leasing, permitting, exploration, and development of offshore oil and gas has significantly changed in the aftermath of the April 2010 Macondo accident and the oil spill that followed. Thus, like wind project leasing/permitting, some parts of the process could be considered somewhat new and immature. Some have likened it to the first child syndrome that is, wanting the process to be parts of the United States. (BOEM, Assessment of Undiscovered Technically Recoverable Oil and Gas Resources of the Nation's Outer Continental Shelf, November, 2011.) The same assessment found that offshore gas resources were 30 percent higher than onshore resources (i.e., 398 trillion cubic feet (Tcf) of gas in the OCS versus 291 Tcf of gas in other areas of the United States.) Undiscovered economically recoverable resources (undiscovered but economically profitable to extract given a particular market price for the resources) are a subset of technically recoverable estimates. Proven (or proved ) reserves are those that have been technically discovered with a very high (e.g., 90 percent) likelihood of being present in a known field. (Gene Whitney, Carl Behrens, and Carol Glover, Congressional Research Service, U.S. Fossil Fuel Resources: Terminology, Reporting, and Summary, November 30, 2010, CRS , R40872, p. 20.) Proved reserves are much smaller than the seemingly vast unproven reserves, and as of 2010, the Energy Information Administration (EIA) estimated that the Gulf of Mexico OCS had only about 4.1 BBO of proved oil reserves, and 14.2 Tcf of proved natural gas reserves. The differences between proved and undiscovered reserves make clear the motivation to continue exploration and production in the GOM. (EIA, Annual Energy Outlook 2012 Oil and Gas Supply Module, 2012, pp ) Typically, offshore resources must be well proven and capable of producing greater volumes per well to justify the added cost of their development relative to onshore resources. (National Petroleum Council (NPC), Prudent Development: Realizing the Potential of North America s Abundant Natural Gas and Oil Resources, September 2011 (hereinafter Prudent Development Report ), Chapter 2 (Operations and Environment), p. 189.) 5 Field production in 2011 is estimated to have been million BBO per day, or roughly BBO per year. The US OCS has an estimated 88.6 BBO of undiscovered technically recoverable conventional oil resources. At current field production levels and using current technology, this would be roughly 42 years of crude oil production in the U.S. oceans. Analysis Group calculation based on information from the EIA. 6 Estimated technical potential of offshore wind resources within 50 miles of the US shore. National Renewable Energy Laboratory (NREL), Large-Scale Offshore Wind Power in the United States, Assessments of Opportunities and Barriers, September 2010, p EIA, Annual Energy Review 2011, September, 2012, Table 8.11a: Electric Net Summer Capacity, p Predecessor agencies include the Minerals Management Service (MMS) and the Bureau of Ocean Energy Management, Regulation and Enforcement (BOEMRE). 6

8 perfect, with legally defensible decisions, but ending up with one that is ultra-attentive, cautious, and super careful. 9 Some areas of the OCS are now off-limits for development: In the case of offshore oil and gas development, parts of the OCS are currently off limits, subject to congressional and administrative policy decisions. Most of the Eastern Gulf of Mexico is under a moratorium for development/leasing until 2022 (under the Gulf of Mexico Energy Security Act of 2006). 10 BOEM s five-year lease plans currently allow no oil/gas development in the areas off of the Pacific (except for parts of Alaska), or off the Atlantic coast (except for potential seismic assessments in certain Atlantic areas). (See Figure 1.a.) For offshore wind, BOEM s Smart from the Start process for approving development identifies Wind Energy Areas (WEAs) of the Atlantic OCS places where the agency could make a finding of no significant impacts for wind development and where BOEM could then offer leases. At present, there are several WEAs in the ocean from Virginia to Massachusetts. (See Figure 1.b.) Figure 1.a Figure 1.b Oil and Gas OCS Planning Areas: Lower 48 States OCS Wind Energy Areas: Mid-Atlantic Source: Area_Maps/Lower%2048%20State%20Planning%20Areas%20with%20restrictions.pdf; Renewable_Energy_Program/Smart_from_the_Start/Wind_Energy_Areas0607.pdf. Offshore energy development occurs in a very busy context: Offshore energy resources tend to be located in areas where there are many other active uses of the ocean. The Gulf of Mexico is one of the nation s most valuable fisheries, for example, and oil/gas development takes place in the midst of active shipping lanes, vibrant recreational activities, priceless ecological systems, and many other human uses. Offshore wind resources in the Mid-Atlantic area exist in areas crowded with many preexisting activities and many important ecological assets. Development is often controversial: In part because the ocean is so filled with diverse resources and activities, there are many different communities with an interest supportive, cautious, opposing, and so forth in energy development. These include constituencies concerned with fisheries, ecological protection, shipping, recreational boating, aviation, defense activities, endangered species, and others. States take a keen interest in activities off their shores, even if such occur beyond a state s own threemile ocean jurisdiction. As a result, development of energy resources whether renewable or fossil 9 This quotation is from one of the senior persons in the oil/natural gas industry interviewed by Analysis Group as part of this study process. 10 Department of Interior BOEM, Proposed Final Outer Continental Shelf Oil & Gas Leasing Program, (hereinafter OCS Lease Plan ), June 2012, p. 2 footnote 6. This plan was approved by Interior Secretary Ken Salazar on August 27,

9 is often accompanied by strongly held differences of opinion. The experience is mixed, principally as a result of whether different user communities are experienced working together. In some areas where oil/gas development has been underway for decades (e.g., in the Western and Central Planning Areas of the Gulf of Mexico), for example, stakeholders on all sides tend to have significant experience working together. There is considerable publicly available information concerning the ocean environment, ecology, geology, and bathymetry. In other parts of the Gulf or in parts of the Atlantic, there is less experience and less trust in how to resolve differences, share information, and so forth. The leasing/permitting process is extremely complex and less efficient than it should be: Although BOEM has primary responsibility to issue leases and plan approvals for offshore energy projects in the OCS, many other federal governmental entities have an interest each with its own responsibility to implement federal statutes that may touch on some aspect of a project s footprint on the ocean. The table below lists the key federal laws that relate directly or indirectly to offshore energy resource development, and for which a project developer must make applications/filings and receive approvals or sign-offs in one form or another. Typically, these reviews are not coordinated, and the agencies have sometimes overlapping and often times conflicting (or inconsistent) mandates when considering an individual project. Often, implementation of some of these statutes involves rounds of consultation across agencies through processes that are sometimes parallel, sometimes serial or circular, and sometimes introducing fresh Efficiency The concept of efficiency can be defined as the quality of producing a desired effect without waste. In this study, the idea of efficiency is central to the discussion of offshore energy development in ways that also assure appropriate environmental protections. We identify inefficiencies in permitting processes, and propose ways to increase efficiency in those instances where the government has decided to allow development to occur. A focus on efficiency does not equate with a focus on lowering standards of environmental protection, or a goal of removing regulation or supporting opening up of all offshore areas for development. Rather, the focus on efficiency in this study is premised on the possibility that ocean planning might be a tool to enhance the efficiency of decision making about where to allow development, where to constrain it, and why. concerns or issues, and/or requirements for new studies and technical information late in the process. Such inconsistencies and lack of coordination combine with other features to introduce inefficiency, complexity, and delays in the permitting processes. From the perspective of offshore energy developers (both fossil and renewable developers), for example, one of the largest sources of inefficiency in the permitting process is the repetition of multiple steps, sometimes without the introduction of materially new or different information. This is said to occur frequently with the multiple rounds of environmental review under the National Environmental Policy Act (NEPA) and additional rounds of consistency reviews under the Coastal Zone Management Act (CZMA) with respect to development in a particular locale. There are also many instances of overlapping and duplicative filing and study requirements, uncertainties in agency requirements, and information gaps that often lead to multiple sequential rounds of information filing and reviews, all of which can significantly delay development. While important policy and legal (including due process) issues may underpin the value of these reviews, inefficiencies in administering the reviews may raise costs and create other burdens for the government (and taxpayers), developers, and the interested public. 8

10 Table 1 Key Federal Statutes Affecting the Permitting of Offshore Oil/Gas or Wind Development Projects Act Act Name Subject Matter Responsible Agency NEPA National Environmental Policy Act Environmental reviews CZMA Coastal Zone Management Act Consistency reviews OCSLA Outer Continental Shelf Lands Act Marine resource extraction lease issuance and development plan approvals NHPA National Historic Preservation Act Accounting for historic resources SLA Submerged Lands Act, Territorial Submerged Lands Act Title to submerged land Council on Environmental Quality (CEQ); each lead agency for project/program review National Oceanic and Atmospheric Administration (NOAA) BOEM Each lead agency for project/program review; Department of Interior (DOI) NOAA, Department of State OPA Oil Pollution Act Spill prevention, remediation Environmental Protection Agency (EPA) CWA Clean Water Act Discharge permitting, dredge materials disposal CAA Clean Air Act Air permits EPA; Army Corps of Engineers (ACOE) EPA (and BOEM for projects in certain offshore areas) RCRA Resource Conservation and Recovery Act Hazardous waste permits and control EPA MPRSA Marine Protection, Research, and Sanctuaries Act (Ocean Dumping Act) Dredge materials disposal MMPA Marine Mammal Protection Act Protecting marine mammals EPA National Marine Fisheries Service (NMFS), which is part of NOAA ESA Endangered Species Act Protection of listed species NMFS; US Fish and Wildlife RHA Rivers and Harbors Act Protection of structures located in navigable waters of the United States ACOE PWSA Ports and Waterways Safety Act Protection of US ports and waterways Coast Guard FAA Federal Aviation Act Protection of navigable US airspace Federal Aviation Administration NPGA Natural Gas Policy Act Siting of natural gas pipeline infrastructure Federal Energy Regulatory Commission (FERC) Ocean energy development requires extreme tenacity: As a result of such issues, the overall offshore energy leasing/development process requires significant tenacity by companies seeking to develop offshore energy resources, as well as by the many other stakeholders with interests in the process. Typically, members of the offshore energy development community are not familiar with ocean planning and how it might affect development: In recent years many coastal states (including California, Florida, Massachusetts, Oregon, Rhode Island, Virginia, and Washington), coastal regions (Mid-Atlantic states such as New York, New Jersey, Maryland, Delaware, and Virginia), and Gulf coast states (Texas and Alabama) have been deploying strategies to better plan for and manage their own ocean areas. In 2010, President Obama issued an executive order establishing a federal National Ocean Council (NOC) an interagency council made up of federal officials thus adopting a national ocean policy and signaling a new role for coastal and marine spatial planning (CMSP), or more simply, marine spatial planning (MSP). Although some in the offshore energy development community are familiar with the fact that the executive order was issued, there does not appear to be deep understanding of either the history of ocean planning efforts in various parts of the United States, the many international examples of MSP, or the potential ways in which ocean planning might evolve at the federal level. Similarly, the ocean planning community is not well versed in the practicalities of ocean energy leasing and permitting. (See Appendix 4 for more information about ocean planning.) 9

11 Marine Spatial Planning: Possibilities for Improving the Efficiency of Offshore Energy Leasing/Permitting/Development? What is Marine Spatial Planning? Although there are many forms that ocean planning can (and does) take in the United States, in simplest terms MSP involves transparent and open processes for fostering better understanding among stakeholders about what resources and human uses are occurring in ocean areas. The process typically involves a forum for parties to consider and weigh in on new opportunities and challenges that are facing the ocean environment, and what uses will or might occur in the future. More technically, MSP has been defined as a comprehensive, adaptive, integrated, ecosystem-based, and transparent spatial planning process, based on sound science, for analyzing current and anticipated uses of ocean [It] identifies areas most suitable for various types or classes of activities in order to reduce conflicts among uses, reduce environmental impacts, facilitate compatible uses, and preserve critical ecosystem services to meet economic, environmental, security, and social objectives. 11 The NOC s approach highlights certain core elements relevant to the discussion of offshore energy development: providing better information and making it broadly available for use in development planning and in decision making, bringing various stakeholder perspectives to the table early enough to make a difference, enhancing coordination across agencies to provide greater certainty in the regulatory environment, and building stronger alignment across state and federal boundaries. The NOC s National Ocean Policy Implementation Plan 12 sets out ways to implement MSP through collaboration with regional ocean entities, including existing groups such as Mid-Atlantic Regional Council on the Oceans (MARCO) or new ones. How different federal and state entities put the concept of ocean planning into effect varies considerably. There is no single recipe for making it work. Rather, ocean planning involves a set of principles that have been applied in many ways in different settings. As one observer has stated, there is no right way or one way to do ocean planning. It s about how to build better information bases for decisions, including scientific information and information about the perspectives of various stakeholders. There s no particular outcome to accomplish, except bringing more relevant information to bear [on the decisions of governments, private parties, and the public]. Different MSP approaches: There are three core approaches in play: Comprehensive marine spatial planning Comprehensive MSP tends to include: broad-based and inclusive stakeholder involvement; directly addressing ocean use conflicts; studying and characterizing ocean resources, uses, and potential conflicts through the use of detailed spatial mapping; and clear coordination among various relevant regulatory and permitting agencies. Two states that have adopted ocean planning statutes (Rhode Island and Massachusetts) have proposed, developed, and are now implementing comprehensive state marine spatial plans. Washington passed its MSP statute in 2010 and will begin implementation in North Carolina and South Carolina have proposed comprehensive marine spatial plans, but are still early in the process. (See Appendix 4 for more details.) Marine spatial mapping, but no ocean plan Several clusters of states have joined together to address ocean issues, focusing more on information collection and dissemination than on planning or management. Three such groups include: the MARCO states in the Mid-Atlantic region (New York, New Jersey, Maryland, 11 White House Council on Environmental Quality ( CEQ ), Final Recommendations of the Interagency Ocean Policy Task Force, July 19, 2010 (hereinafter Interagency Ocean Policy Task Force Recommendations ), p The NOC s National Ocean Policy Implementation Plan was in draft form during the period when the Analysis Group team conducted research for this study. The final plan was approved by the NOC in April

12 Delaware, and Virginia); several Gulf states (Alabama, Florida, Louisiana, Mississippi, and Texas) have formed the Gulf of Mexico Alliance (GOMA); and the six New England states whose governors have set up the Northeast Regional Ocean Council (NROC). In these states, there are significant efforts to perform detailed marine spatial mapping of resources, uses and potential conflicts. The goal is to provide better information and tools for decisions of private parties, regulators, and other policymakers. Resource conservation-focused ocean planning Other states undertaking ocean-planning efforts have focused more specifically on resource conservation. Within this approach, planning efforts are less focused on the coordination of the spatial aspects of different ocean resources users and uses, and more on finding the most effective means to conserve particular resources in ways that are acceptable to relevant stakeholders. This approach is being used, for example, in Oregon and Hawaii, and in selected areas in Florida. At the federal level (and even at the state and regional level), the ocean-planning process is still relatively new. Because both it and the current permitting processes for oil/gas and wind are still evolving, there is little empirical experience about specific ways that ocean planning may have already been helpful in rendering the offshore-ocean permitting process more efficient. Moreover, the newness of the ocean planning process has caused some in the development community to be skeptical and concerned that it will make the process more, rather than less, inefficient. It is therefore necessary to rely upon informed speculation about the potential for ocean planning to improve the efficiency of offshore energy development. This speculation is influenced by detailed research into and analyses of the current processes used to issue leases and obtain plan/permit approvals for offshore energy development processes. Connecting the Dots between Ocean Planning and Offshore Energy Development Ocean planning has the potential to improve the efficiency of leasing and permitting processes for offshore energy development, even under current regulatory frameworks: Permitting of energy facilities in the OCS is important to get right, for countless economic and environmental reasons. The enormous renewable and fossil-fuel energy resources located in the OCS offer large, domestic supplies with potential to meet consumer demand, create economic opportunities, bring value to local and national economies, and (in the case of offshore renewable energy) provide a low-carbon energy resource. Major investment is required to bring such domestic energy supplies to market, and allowing private parties the opportunity to tap these resources for broader use depends upon efficient and effective management as well as considerable attention to avoiding and mitigating environmental impacts. These resources occupy public lands, for which the federal government holds significant stewardship responsibility. These offshore resources share a location with many other users and uses of natural resources in the ocean. The potential development risks are real and environmental impacts can be large. Access to these resources should clearly depend upon responsible permitting and prudent development, in which environmental standards are not compromised. It is hard to overstate the extent to which projects to develop oil/gas resources and wind energy in the OCS are major undertakings, from a technical, economic, and risk-management point of view. Therefore, the process to obtain access to the OCS for developing oil and gas resources is inherently complex, expensive, time-consuming, and still evolving. Even so, the existence of inefficiencies in the process introduces unnecessary costs for those portions of the OCS where federal officials seek to make energy resources available for development. Ocean planning has the potential to address many of these issues in many ways: 11

13 Improved quality and quantity of location-specific technical information: A core element of ocean planning is to improve the scientific and other technical information available on resources, uses, conditions, and other attributes located in specific areas of the ocean. There are several ways in which ocean planning can be used as a tool to improve location-specific information of value to those interested in offshore energy development, even without necessarily being prescriptive about any particular development outcomes. For example: Improved data quality and quantity: Many of the ongoing state and regional processes focus in particular on improving the quality and quantity of ocean-related technical information, including marine spatial mapping. Most of the regional initiatives (e.g., MARCO, GOMA) and the National Ocean Policy Implementation Plan 13 share this objective. Improved coordination and leveraging of information collection and mapping efforts across the federal agencies, across states in regional contexts, and across federal/state efforts. Specifically, the National Ocean Council s plan calls for greater accessibility to data and information to support commercial markets and industries, such as commercial fishing, maritime transportation, aquaculture, and offshore energy. Agencies will take a series of actions to facilitate the availability of relevant ocean data to provide easier access to information for research, planning, and decision support. 14 The plan also aspires to strengthen the ability to acquire marine data and provide information, in part by developing an integrated ocean and coastal data and information-management system to support real-time observations, 15 and providing high-quality data and tools necessary to support sciencebased decision-making and ecosystem-based management. 16 Ocean planning initiatives elsewhere also include actions to link up existing databases and provide a place to house newly collected information as it unfolds over time. Such information will help parties find relevant data, and provides a way for various parties to see what information is available, what is not, and to weigh in on what new information collection is needed. In Rhode Island, for example, the state planning effort involved developing data-collection agreements to help guide information collection by third parties, to develop agreed-upon sampling protocols, and to bring down data costs. This is an example of where more coordinated ocean-planning efforts led to cost savings by leveraging access to a single ocean-going survey vessel for multiple users. Similarly, one particular area of potential mutual (e.g., public/private) benefit might arise through a quid pro quo approach to access and data collection. Various private interests might be granted expedient access to certain unexplored or previously off-limits ocean areas where data gaps exist for the purpose of detailed data collection efforts. This access might be granted on the presumptive condition that the data acquired subsequently be shared publically for the betterment of a potentially wide range of stakeholders, including government agencies and civil society. 13 Businesses, communities, and governments that rely on ocean resources need high-quality scientific information and data. Greater access to high-quality data and information will enable maritime industries, resource managers, and decision makers at all levels of government to make responsible and effective decisions. Federal agencies will take the following actions that strengthen the national economy through enhanced accessibility to data and information and robust, sustained observing systems: Advance our mapping and charting capabilities and products to support a range of economic activities. Provide greater accessibility to data and information to support commercial markets and industries, such as commercial fishing, maritime transportation, aquaculture, and offshore energy...sustain and further develop observing systems for the economic benefit of maritime commerce and marine industry. NOC, National Ocean Policy Implementation Plan, April 2013, pp See more generally, pp National Ocean Policy Implementation Plan, p National Ocean Policy Implementation Plan, p National Ocean Policy Implementation Plan, p

14 Improved access to location-specific information for public and private decision makers, potential developers, and other interested stakeholders: One example is the NOC s/federal government s new gateway website at ocean.data.gov web portal, which is part of the national initiative to enhance MSP. Other examples are: the National Oceanic and Atmospheric Administration s (NOAA) Gulf of Mexico Atlas, accessible through the GOMA Portal; Rhode Island s map viewer portal that is part of the state s Ocean Special Area Management Plan (Ocean SAMP or OSAMP); MARCO s Mid-Atlantic Ocean Data Portal; and Massachusetts s Ocean Resource Information System (MORIS). Making information more broadly accessible has a number of benefits, including helping to improve the efficiency of information collection and avoiding redundant or duplicative data efforts. Providing open access leverages public and private dollars spent on information collection, and can lower the cost for prospective developers entry to markets by allowing them access to others prior investments in information collection and dissemination. It can help to inform decisions of energy companies with respect to the prospects for developing energy projects in some areas (and not others). It can help to identify areas where different uses are more or less compatible, or areas which require special protections, or cumulative impacts of multiple forms and types of development. It can lessen the likelihood that developers will pursue projects in particular areas with conflicting uses, or highly sensitive resources or at least will give notice to developers of relative investment/permitting risks for different areas. Improved quality and quantity of public and private participation in determining the disposition of ocean resources: Another fundamental premise of ocean planning is stakeholder involvement. With access to better information and when invited to have a seat at the table, stakeholders can participate more effectively in the processes affecting ocean energy development. There are many examples where it has worked (e.g., where more inclusive engagement ended up saving time and avoiding conflicts later in the process) or where parties have identified instances where the development process might have been improved had ocean planning been used in the past. Ocean planning can help identify areas of particular interest or sensitivity from either a development point of view (e.g., areas with robust wind resources and appropriate undersea conditions for wind projects; areas with particularly rich shallow-water or deep water hydrocarbon basins under the ocean seabed), or from an ecosystem protection perspective (e.g., presence of endangered species or valuable marine habitats), or from broader economic point of view (e.g., areas with already established industries, like commercial or recreational fishing, or intense ship traffic). This does not necessarily lead to determinations that you must develop here or you must protect there. But it does raise the level and quality of information that public and private decisions makers would have in determining their own choices with respect to ocean plans/projects, and in defending them. In the end, ocean planning is not so much about determining in advance what should or should not be developed or protected in a particular area, but rather, it is about providing mechanisms, tools, venues, and information so that decision makers can make better decisions. Improved efficiency of public and private expenditures devoted to permitting while reducing regulatory risk: By sharing information and enabling more effective coordination across agencies, ocean planning can help reduce redundant efforts, and identify gaps and inconsistencies. Such efficiency 13

15 improvements can redound to public and private participants. From the point of view of permitting agencies, ocean planning may allow them to use previously adopted ocean plans as a lens through which to help evaluate the goodness-of-fit of specific project proposals. It may help the agency meet statutory deadlines in a more timely and cost-effective way. It might allow for agencies greater reliance on more tiered environmental assessments so that they only need to add more specific and incremental information as relevant, rather than starting from a blank page. This might result from more deliberate use of prior agency and governmental plans as foundations for their reviews and permitting actions. Agency managers may be able to determine whether to approve project plans in a less-cautious and timelier fashion, while both standing on stronger grounds to defend their decisions and not compromising environmental protection. Such actions have benefits from the point of view of energy developers, too, by: providing information to help them understand how their project options align or conflict with other uses of the ocean; avoiding development sites that are likely to raise irreconcilable conflicts among stakeholders, or at least giving them advance indication that their preferred site will need to have outstanding benefits to offset the risks and tensions associated with other nearby activities; obtaining faster agency action (either yes or no); and realizing reduced risk of permitting delays as approvals are tied up in court review. Echoing the comments of many in the industry, a senior oil and gas developer said, the biggest inefficiency for oil and gas permitting is duplication of work. There are multiple consistency reviews at multiple stages, and similarly [we] have to do the same things for a project right next to an existing project. There are multiple archeological studies needed. Getting sign-offs from many agencies in a serial fashion is very time consuming For oil and gas, especially when developing new areas, ocean planning could speed up the permitting process increased speed and certainty is clearly more important than reducing costs. Paperwork costs can be absorbed, but there has to be a light at the end of the tunnel. Given the relatively new aspects of the BOEM s reviews of both oil/gas leases and plans as well as offshore wind areas/projects, ocean planning may be a way to reduce the regulatory risk associated with the agency s first child syndrome (its desire for the process to be perfect, but ending up with an ultraattentive, cautious, and super careful approach that often translates into a slow process). In certain locales (including parts of the Atlantic where, in theory, there could be both wind energy as well as fossil energy development) the overall risk is exacerbated in some cases by lack of detailed pre-existing information about ocean-based resources, conditions and activities. This means at times that the applicants must conduct many years of data collection to characterize systems in the potential lease areas. The fact that initial site assessments (for wind, or for oil/gas) do not confer a right to develop any resources found to exist in an area means that the leaseholder may undertake those years of study, and carry out the related environment reviews, without an expectation of being able to develop in the area. This creates significant investment risk for the prospective wind developer or oil/gas developer. Ocean planning processes might provide a vehicle for raising confidence in the process. Enhanced state/federal cooperation on ocean resource development and protection objectives: Ocean planning has already proven to strengthen state/federal cooperation. As one observer put it, a state that has its act together can use ocean planning as a way to influence things in federal waters. A prime example is Rhode Island s Ocean SAMP an ocean plan borne out of the state s interest in better managing competing uses of its ocean and for facilitating the siting of offshore wind energy projects. The state s plan stands on its own statutory authorities, extends its reach through a SAMP approach under a Coastal Zone Management (CZM) plan that has been approved by NOAA, and then provides a platform through which the state has a stronger voice in actions taking place in federal waters some 30 miles off the shore of the state. More proactive and less reactive government decision-making processes: Ocean planning will undoubtedly provide different contributions in different regions. In coastal and offshore areas where there is not now significant energy infrastructure development, ocean planning may be a way for states and the federal government to play a more proactive role in facilitating development in places where such is 14